James Madison (December 5, 1810)

Fellow-Citizens of the Senate and House of Representatives:

The embarrassments which have prevailed in our foreign relations, and so
much employed the deliberations of Congress, make it a primary duty in
meeting you to communicate whatever may have occurred in that branch of our
national affairs.

The act of the last session of Congress concerning the commercial
intercourse between the United States and Great Britain and France and
their dependencies having invited in a new form a termination of their
edicts against our neutral commerce, copies of the act were immediately
forwarded to our ministers at London and Paris, with a view that its object
might be within the early attention of the French and British Governments.

By the communication received through our minister at Paris it appeared
that knowledge of the act by the French Government was followed by a
declaration that the Berlin and Milan decrees were revoked, and would cease
to have effect on the first day of November ensuing. These being the only
known edicts of France within the description of the act, and the
revocation of them being such that they ceased at that date to violate our
neutral commerce, the fact, as prescribed by law, was announced by a
proclamation bearing date the 2nd of November.

It would have well accorded with the conciliatory views indicated by this
proceeding on the part of France to have extended them to all the grounds
of just complaint which now remain unadjusted with the United States. It
was particularly anticipated that, as a further evidence of just
dispositions toward them, restoration would have been immediately made of
the property of our citizens under a misapplication of the principle of
reprisals combined with a misconstruction of a law of the United States.
This expectation has not been fulfilled.

From the British Government no communication on the subject of the act has
been received. To a communication from our minister at London of a
revocation by the French Government of its Berlin and Milan decrees it was
answered that the British system would be relinquished as soon as the
repeal of the French decrees should have actually taken effect and the
commerce of neutral nations have been restored to the condition in which it
stood previously to the promulgation of those decrees. This pledge,
although it does not necessarily import, does not exclude the intention of
relinquishing, along with the others in council, the practice of those
novel blockades which have a like effect of interrupting our neutral
commerce, and this further justice to the United States is the rather to be
looked for, in as much as the blockades in question, being not more
contrary to the established law of nations than inconsistent with the rules
of blockade formally recognized by Great Britain herself, could have no
alleged basis other than the plea of retaliation alleged as the basis of
the orders in council.

Under the modification of the original orders of November, 1807, into the
orders of April, 1809, there is, indeed, scarcely a nominal distinction
between the orders and the blockades. One of those illegitimate blockades,
bearing date in May, 1806, having been expressly avowed to be still
unrescinded, and to be in effect comprehended in the orders in council, was
too distinctly brought within the purview of the act of Congress not to be
comprehended in the explanation of the requisites to a compliance with it.
The British Government was accordingly apprised by our minister near it
that such was the light in which the subject was to be regarded.

On the other important subjects depending between the United States and the
Government no progress has been made from which an early and satisfactory
result can be relied on.

In this new posture of our relations with those powers the consideration of
Congress will be properly turned to a removal of doubts which may occur in
the exposition and of difficulties in the execution of the act above
cited.

The commerce of the United States with the north of Europe, heretofore much
vexed by licentious cruisers, particularly under the Danish flag, has
latterly been visited with fresh and extensive depredations. The measures
pursued in behalf of our injured citizens not having obtained justice for
them, a further and more formal interposition with the Danish Government is
contemplated. The principles which have been maintained by that Government
in relation to neutral commerce, and the friendly professions of His Danish
Majesty toward the United States, are valuable pledges in favor of a
successful issue.

Among the events growing out of the state of the Spanish Monarchy, our
attention was imperiously attracted to the change developing itself in that
portion of West Florida which, though of right appertaining to the United
States, had remained in the possession of Spain awaiting the result of
negotiations for its actual delivery to them. The Spanish authority was
subverted and a situation produced exposing the country to ulterior events
which might essentially affect the rights and welfare of the Union. In such
a conjuncture I did not delay the interposition required for the occupancy
of the territory west of the river Perdido, to which the title of the
United States extends, and to which the laws provided for the Territory of
Orleans are applicable. With this view, the proclamation of which a copy is
laid before you was confided to the governor of that Territory to be
carried into effect. The legality and necessity of the course pursued
assure me of the favorable light in which it will present itself to the
Legislature, and of the promptitude with which they will supply whatever
provisions may be due to the essential rights and equitable interests of
the people thus brought into the bosom of the American family.

Our amity with the powers of Barbary, with the exception of a recent
occurrence at Tunis, of which an explanation is just received, appears to
have been uninterrupted and to have become more firmly established.

With the Indian tribes also the peace and friendship of the United States
are found to be so eligible that the general disposition to preserve both
continues to gain strength.

I feel particular satisfaction in remarking that an interior view of our
country presents us with grateful proofs of its substantial and increasing
prosperity. To a thriving agriculture and the improvements related to it is
added a highly interesting extension of useful manufactures, the combined
product of professional occupations and of household industry. Such indeed
is the experience of economy as well as of policy in these substitutes for
supplies heretofore obtained by foreign commerce that in a national view
the change is justly regarded as of itself more than a recompense for those
privations and losses resulting from foreign injustice which furnished the
general impulse required for its accomplishment. How far it may be
expedient to guard the infancy of this improvement in the distribution of
labor by regulations of the commercial tariff is a subject which can not
fail to suggest itself to your patriotic reflections.

It will rest with the consideration of Congress also whether a provident as
well as fair encouragement would not be given to our navigation by such
regulations as would place it on a level of competition with foreign
vessels, particularly in transporting the important and bulky productions
of our own soil. The failure of equality and reciprocity in the existing
regulations on this subject operates in our ports as a premium to foreign
competitors, and the inconvenience must increase as these may be multiplied
under more favorable circumstances by the more than countervailing
encouragements now given them by the laws of their respective countries.

Whilst it is universally admitted that a well-instructed people alone can
be permanently a free people, and whilst it is evident that the means of
diffusing and improving useful knowledge form so small a proportion of the
expenditures for national purposes, I can not presume it to be unseasonable
to invite your attention to the advantages of superadding to the means of
education provided by the several States a seminary of learning instituted
by the National Legislature within the limits of their exclusive
jurisdiction, the expense of which might be defrayed or reimbursed out of
the vacant grounds which have accrued to the nation within those limits.

Such an institution, though local in its legal character, would be
universal in its beneficial effects. By enlightening the opinions, by
expanding the patriotism, and by assimilating the principles, the
sentiments, and the manners of those who might resort to this temple of
science, to be redistributed in due time through every part of the
community, sources of jealousy and prejudice would be diminished, the
features of national character would be multiplied, and greater extent
given to social harmony. But, above all, a well-constituted seminary in
the center of the nation is recommended by the consideration that the
additional instruction emanating from it would contribute not less to
strengthen the foundations than to adorn the structure of our free and
happy system of government.

Among the commercial abuses still committed under the American flag, and
leaving in force my former reference to that subject, it appears that
American citizens are instrumental in carrying on a traffic in enslaved
Africans, equally in violation of the laws of humanity and in defiance of
those of their own country. The same just and benevolent motives which
produced interdiction in force against this criminal conduct will doubtless
be felt by Congress in devising further means of suppressing the evil.

In the midst of uncertainties necessarily connected with the great
interests of the United States, prudence requires a continuance of our
defensive and precautionary arrangement. The Secretary of War and Secretary
of the Navy will submit the statements and estimates which may aid Congress
in their ensuing provisions for the land and naval forces. The statements
of the latter will include a view of the transfers of appropriations in the
naval expenditures and in the grounds on which they were made.

The fortifications for the defense of our maritime frontier have been
prosecuted according to the plan laid down in 1808. The works, with some
exceptions, are completed and furnished with ordnance. Those for the
security of the city of New York, though far advanced toward completion,
will require a further time and appropriation. This is the case with a few
others, either not completed or in need of repairs.

The improvements in quality and quantity made in the manufacture of cannon
and small arms, both at the public armories and private factories, warrant
additional confidence in the competency of these resources for supplying
the public exigencies.

These preparations for arming the militia having thus far provided for one
of the objects contemplated by the power vested in Congress with respect
to that great bulwark of the public safety, it is for their consideration
whether further provisions are not requisite for the other contemplated
objects of organization and discipline. To give to this great mass of
physical and moral force the efficiency which it merits, and is capable of
receiving, it is indispensable that they should be instructed and practiced
in the rules by which they are to be governed. Toward an accomplishment of
this important work I recommend for the consideration of Congress the
expediency of instituting a system which shall in the first instance call
into the field at the public expense and for a given time certain portions
of the commissioned and non-commissioned officers. The instruction and
discipline thus acquired would gradually diffuse through the entire body of
the militia that practical knowledge and promptitude for active service
which are the great ends to be pursued. Experience has left no doubt either
of the necessity or of the efficacy of competent military skill in those
portions of an army in fitting it for the final duties which it may have to
perform.

The Corps of Engineers, with the Military Academy, are entitled to the
early attention of Congress. The buildings at the seat fixed by law for the
present Academy are so far in decay as not to afford the necessary
accommodation. But a revision of the law is recommended, principally with a
view to a more enlarged cultivation and diffusion of the advantages of such
institutions, by providing professorships for all the necessary branches of
military instruction, and by the establishment of an additional academy at
the seat of Government or elsewhere. The means by which war, as well for
defense as for offense, are now carried on render these schools of the more
scientific operations an indispensable part of every adequate system.

Even among nations whose large standing armies and frequent wars afford
every other opportunity of instruction these establishments are found to be
indispensable for the due attainment of the branches of military science
which require a regular course of study and experiment. In a government
happily without the other opportunities seminaries where the elementary
principles of the art of war can be taught without actual war, and without
the expense of extensive and standing armies, have the precious advantage
of uniting an essential preparation against external danger with a
scrupulous regard to internal safety. In no other way, probably, can a
provision of equal efficacy for the public defense be made at so little
expense or more consistently with the public liberty.

The receipts into the Treasury during the year ending on the 30th of
September last (and amounting to more than $8.5 millions) have exceeded
the current expenses of the Government, including the interest on the
public debt. For the purpose of reimbursing at the end of the year $3.75
millions of the principal, a loan, as authorized by law, had been
negotiated to that amount, but has since been reduced to $2.75 millions,
the reduction being permitted by the state of the Treasury, in which there
will be a balance remaining at the end of the year estimated at $2
millions. For the probable receipts of the next year and other details I
refer to statements which will be transmitted from the Treasury, and which
will enable you to judge what further provisions may be necessary for the
ensuing years.

Reserving for future occasions in the course of the session whatever other
communications may claim your attention, I close the present by expressing
my reliance, under the blessing of Divine Providence, on the judgement and
patriotism which will guide your measures at a period particularly calling
for united councils and flexible exertions for the welfare of our country,
and by assuring you of the fidelity and alacrity with which my cooperation
will be afforded.